Bonus Program Phase 2 Downtown New Westminster Bonus Program Phase 2 City of New Westminster Presentation to the Urban Development Institute May 2, 2014 Michael Watson, Planning Technician, Barry Waitt, Senior Planner and Julie Schueck, Heritage Planner Bonus Program Phase 2 Presentation Agenda 1. Bonus Program Phases 2. How Amenities are Collected Now 3. Program Principles 4. Bonus Contributions 5. Phase 2 Overview 6. 7. Implementation Options 8. Heritage Considerations 9. Rental Retention 10. Additional Information 11. Benefits to Development Community 1
Bonus Program Overview Program Phases Phase Description Status Phase 1 Bonus for Low & Medium Zoning Completed (2010) Districts (City Wide) Phase 2 Bonus for High Districts Aligned with Downtown Community Plan (Downtown) We Are Here Future Phases Consideration of Bonus in Accordance with a New Official Community Plan including High Districts (City Wide) Future How Amenities are Collected Now Currently the City of New Westminster obtains amenity contributions through a negotiated Community Amenity Contribution (CAC) process. The City is looking to move away from the CAC method to a bonus density approach where possible as it: is more transparent is consistent and predictable is administratively simpler is simpler to understand is more cost effective saves staff time saves developer time reduces developer risk 2
Bonus Program Principles 1. Be simple to understand and apply. 2. Reflect existing development rights in downtown New Westminster through the base density. 3. Reflect the land use designations of the Downtown Community Plan through bonus density. 4. Not be applied to sites where the conservation of heritage buildings is the primary goal. 5. Not be applied where it will encourage the loss of rental units. Bonus Contributions Council policy allocates contributions collected by bonus density as follows: 10% Child Care; 10% Public Art (added November 5, 2012) 30% Affordable Housing; 50% General Amenities Presently values are established as indicated in the table below. The city s consultants have currently valued high rise floor space at $25 per sq. ft. Housing Form Location Contribution Per Area Above Base Townhouse Apartment (Low Rise) Mainland Queensborough Mainland Queensborough $80 per sq. ft. $70 per sq. ft. $55 per sq. ft. $40 per sq. ft. Apartment (High Rise) City Wide $25 per sq. ft. 3
Bonus Phase 2 Summary Phase 2 would be limited to the area covered by the Downtown Community Plan. Staff are recommending a system that would: retain existing zoning entitlements within a base density allow the option of building to bonus densities and heights consistent with the Downtown Community Plan Base Existing Zoning Entitlements Bonus Amenity Contribution Bonus OCP Designation Bonus Phase 2 Summary OCP Land Use Designation B Bonus A Existing Maximum Permitted Height Existing Entitlement Base Base : Portion of existing density entitlement achievable within existing maximum permitted height Bonus A: Portion of existing density entitlement not achievable with existing maximum permitted height Bonus B: Potential density over existing entitlement up to OCP maximum permitted heights 4
Presentation Agenda Height and Alignment Residential Conversion (UPA to FSR) Residential Districts (RM-4 and RM-6) Establishing Base Bonus Mixed Use District (C-4) Establishing Base Bonus Implementation Options Columbia Street Historic District (C-8) and Heritage Designated Properties Rental Retention Height and Alignment As mentioned in the overview, the base density would be aligned with the achievable density in each zoning district. Determining what is achievable requires consideration of both the maximum allowable density and the maximum allowable height. In most cases the height is the primary factor in determining achievable density. Existing Entitlement B A OCP Designation Bonus Existing Maximum Permitted Height Base 5
Residential Conversion (UPA to FSR) Many density regulations in the existing Zoning Bylaw are in a Unit per Acre (UPA) measurement and require conversion to Floor Space Ratio (FSR) for use in the Bonus Program. Staff have used the following conversion formula: FSR = (UPA) x (Average Unit Size) 1 acre (43,560 sq. ft.) This formula requires an assumption of the average unit size. Staff reviewed recent development applications and have used: Average Unit Size of 900 sq. f.t (gross) This is inclusive of corridors & common spaces (net unit size of 765 sq. ft.) Establishing Base Residential The two residential districts to which Phase 2 would apply are RM-4 and RM-6. Existing regulations and the converted FSRs are summarized in the table below: Zoning Existing Regulations District Units / Acre FSR FSR Conversion RM-4 120 UPA* ** N/A 2.48 FSR RM-6 150 UPA * 3.0 FSR 3.10 FSR *not to exceed 4.0 FSR ** based on achieving incentives This table is a consideration of density only and does not factor in height. 6
Establishing Base Maximum Heights RM-4: height is not specifically regulated, however it is limited by the setback requirements which, as buildings get higher, the setback requirements get more restrictive. Setbacks are a percentage of building height. At a certain height, the building setbacks get so restrictive that its not efficient to develop. Based on a site of 29,000 sq. ft. staff anticipate a maximum height between 10 and 12 storeys would be achievable without variances, depending on existing site grade and floor to ceiling heights. Establishing Base Maximum Heights RM-6: height is limited by Supplementary Plan 3 Achievable density in the RM-6 districts will be a function the of form possible within the height limitations. As such, staff have separated the base density into two categories based on height. 7
Establishing Base Maximum Heights Achievable density in the RM-6 districts is a function of the building form possible within the height limitations. As such, staff have separated the base density into two categories based on height. Maximum Height Achievable Form Achievable Less than 70 feet 4 5 storey wood 2.0 FSR frame 70 feet or more 6 storey wood frame 2.5 FSR The densities for each form is derived from recently processed development applications within the City. Establishing Base Height and Zone Achievable Height RM-4 10-12 storeys Achievable Base Base Height 2.48 FSR 2.5 FSR 150 feet Zone RM-6 Height Less that 70 Feet RM-6 Height 70 feet or More Achievable Building Less than 6 storeys 6 storeys or more Achievable Base Base Height 2.0 FSR 2.0 FSR Existing Heights (Map) 2.5 FSR 2.5 FSR Existing Heights (Map) 8
Bonus Bonus is established using the land use designations within the Downtown Community Plan. The residential zones which will be affected are contained within the following two land use designations: Bonus Regulations: : 4.0 FSR Height: 240 feet Bonus Regulations: : 3.0 FSR Height: 100 feet Residential Districts - Summary The table below summarizes the proposed density bonus program in Downtown residential areas: Maximum Maximum Height Base Existing Permitted Height Less Than 70 feet Existing Permitted Height More Than or Equal to 70 feet 2.0 FSR (Total) 2.5 FSR (Total) Existing Height Entitlements Mid-Rise OCP Designation 3.0 FSR (Total) 100 feet Bonus High Rise OCP Designation 4.0 FSR (Total) 240 feet 9
Establishing Base UPA Conversion Mixed Use Districts - Densities The only mixed use district to which Phase 2 would apply is the C-4 district. Existing regulations and the converted FSR are summarized in the table below: Zoning District Residential UPA Existing Regulations Residential FSR Overall FSR Conversion C-4 150 UPA* 3.0 FSR 5.2 FSR 3.10 FSR *not to exceed 4.0 FSR This table is a consideration of density only and does not factor in height. Establishing Base Maximum Heights / Base C-4: height is also limited by Supplementary Plan 3 Achievable density in the C-4 districts is a function of the building form possible within these height limitations. C-4 is more permissive than the RM-6 district in terms of building setbacks. As such base residential base density has been set at a 3.0 FSR in this district 10
Establishing Base Bonus Again, Bonus is established using the land use designations within the Downtown Community Plan. The mixed use zone which will be affected are contained within the following land use designation: Bonus Regulations: Residential : 5.2 FSR Overall : 5.2 FSR Height: 240 feet Commercial uses would be permitted to use bonus density without payment of density bonus amenity contributions. Mixed Use Districts - Summary The table below summarizes the proposed density bonus program in Downtown mixed use areas: Maximum Residential Maximum Height Maximum Overall Base 3.0 FSR Existing Height Entitlements 5.2 FSR Mixed-Use High OCP Designation 5.2 FSR 240 feet 5.2 FSR Bonus Columbia Historic OCP Designation & Sites on the Heritage Register Excluded from Bonus Program Excluded from Bonus Program Excluded from Bonus Program 11
Bonusing Heritage Sites Sites within the Columbia Street Historic Districts OCP designation and sites on the Heritage Register would be included in the Transfer System, rather than the Bonus Program Transfer System is already in place and allows donor sites to sell density to a recipient site. Staff is recommending some changes to enhance the viability of the transfer program: Extend the system to include heritage registered sites in the downtown as donors Expand the recipient area to the entire downtown neighbourhood meaning more sites could purchase density. Bonusing Rental Housing Sites Key goal is to ensure the provision of an adequate market rental housing stock. Staff propose a 1:1 replacement ratio of rental units in new buildings. Buildings providing 100% secured market rental units would be exempt from density bonus payment Number of Rental Units BEFORE Development = OR < Number of Rental Units AFTER Development 12
Implementation Options Option 1: Prezoned Bonus Eligible properties would be pre-zoned to allow additional density through the provision of density bonus amenity contributions. This option would streamline the approvals process and public consultation and Council approvals normally associated with a rezoning process would not be required. Option 2: Bonus Accessed Through Rezoning Eligible properties would be required (through Council policy) to rezone into a bonus density zone. The rezoning application process would require public consultation and Council approval. Following approvals access to bonus density would permitted by payment of a density bonus amenity contribution. Bonus Phase 2 Option Comparison Council Discretion Public Consultation Development Certainty Development Approvals Speed Achieved Value of Amenity Simplicity Transparency Efficiency of Staff Resources City Cost Effectiveness Ease of Admin. / Flexibility Score Negotiation and Financial Analysis (Status Quo) Option 1: Pre-Zoned Bonus High (4) Low (2) High (4) High (4) Low (2) High (4) Very Low (1) Very High (5) High (4) Option 2: Bonus Accessed Through Rezoning Low (2) High (4) Moderate (3) Low (2) High (4) High (4) Low (2) High (4) Moderate (3) Very Low (1) High (4) High (4) Low (2) High (4) Moderate (3) Very Low (1) High (4) Moderate (3) High (4) Low (2) Moderate (3) 23 35 35 13
Additional Information Existing Zoning Districts would be rewritten in a much clearer, simpler and concise format. Where possible, staff would develop corresponding Council policy in an attempt to reduce risk. The specifics of the policy would depend on the implementation option used. Bonus values would be updated (upwards or downwards) on an annual basis. Staff would implement a grandparent clause that would allow development applications received before a specific date to chose the existing Community Amenity Contribution approach or use the Bonus approach. Next Steps Continue to receive feedback from the public and stakeholders until May 30 th, 2014 At the conclusion of the public consultation and stakeholder engagement process staff will be reporting on the results to Council. Staff are aiming to have Council consider a bylaw and hold a public hearing in September of this year. 14
Next Steps Contacts: Barry Waitt, Mike Watson, Senior Planner Planning Technician bwaitt@newwestcity.ca mwatson@newwestcity.ca 604-527-4513 604-527-4519 Stay in touch and up to date! Website: www.newwestcity.ca/db2 @NewWestPlanning /NewWestminster 15